Public  Document 


No.  110 


REPORT 

OF  THE 

BOARD  OF  PAROLE 

FOB  THE 

STATE  PRISON 


AND  THE 

MASSACHUSETTS  REFORMATORY. 


BOSTON: 

WRIGHT  & POTTER  PRINTING  CO.,  STATE  PRINTERS, 
32  DERNE  STREET. 

1916. 


Public  Document 


No.  no 


JUM 


1916 


REPORT 


OF  THE 


BOARD  OF  PAROLE 


FOR  THE 


STATE  PRISON 


AND  THE 


MASSACHUSETTS  REFORMATORY. 


BOSTON: 

WRIGHT  & POTTER  PRINTING  CO.,  STATE  PRINTERS, 
32  DERNE  STREET. 

1916. 


Approved  by 

The  State  Board  of  Publication. 


L.  \ eho^7. 


36f 

JA3SI 

\ O)  I S / 1 5 


THE  BOARD  OF  PAROLE  FOR  THE  STATE  PRISON  AND 
THE  MASSACHUSETTS  REFORMATORY. 


STATE  HOUSE,  BOSTON. 


V 

J 

xP 


Frank  L.  Randall  of  Cambridge,  Chairman. 
John  B.  Hebberd  of  Newton. 

Thomas  C.  O’Brien  of  Boston. 

Warren  F.  Spalding  of  Cambridge. 

John  H.  Mack  of  North  Adams. 


John  B.  Hebberd,  Clerk. 


®l)c  Ccnnmotunealtl)  of  Jllassartjusetts. 


State  House,  Boston,  Feb.  14,  1916. 

To  the  Honorable  the  Senate  and  the  House  of  Representatives  in  General 

Court  Assembled. 

The  Board  of  Parole  for  the  State  Prison  and  the  Massa- 
chusetts Reformatory  respectfully  submits  the  following  report 
of  its  work  from  its  organization  to  Dec.  1,  1915. 

Prior  to  the  fourth  day  of  March,  1915,  the  Board  had  no 
authority  to  make  a report.  That  authority  was  given  at 
that  date  by  chapter  35  of  the  General  Acts  of  1915.  On  the 
twenty-seventh  day  of  May,  1915,  a report  was  submitted  to 
the  Legislature  in  accordance  with  the  provisions  of  that  chap- 
ter, but  it  was  returned  soon  after  by  the  Secretary  of  the 
Commonwealth  because  the  report  of  the  Board  of  Parole  for 
the  Reformatory  for  Women  accompanied  it.  Before  it  was 
prepared  for  separate  submission  the  Legislature  was  pro- 
rogued. 

The  Board  now  resubmits  the  text  of  that  report,  together 
with  a recommendation  for  the  enactment  of  an  indeterminate 
sentence  law  for  the  State  Prison,  and  a recommendation  that 
the  Board  be  authorized  to  appoint  a parole  agent.  (See 
pages  18  and  21.) 

Statistics  of  the  work  of  the  Board  for  the  year  ending 
Dec.  1,  1915,  have  also  been  added. 

FRANK  L.  RANDALL,  Chairman. 

JOHN  B.  HEBBERD. 

WARREN  F.  SPALDING. 

THOMAS  C.  O’BRIEN. 

JOHN  H.  MACK. 


€ommontoealtb  of  Jttassacliusetts. 


REPORT. 


The  Board  of  Parole  for  the  State  Prison  and  the  Mas- 
sachusetts Reformatory  was  created  by  chapter  829  of  the 
Acts  of  the  year  1913,  the  provisions  of  which  are  as  follows:  — 

An  Act  to  create  Boards  of  Parole  and  an  Advisory  Board  of 

Pardons. 

Be  it  enacted , etc.,  as  follows: 

Section  1.  The  chairman  of  the  board  of  prison  commissioners,  the 
deputy  commissioner  whose  appointment  is  authorized  by  this  act  and 
three  persons  appointed  by  the  governor,  with  the  advice  and  consent  of 
the  council,  shall  constitute  the  board  of  parole  for  the  state  prison  and 
the  Massachusetts  reformatory.  The  terms  of  office  of  the  appointed 
members  shall  be  so  arranged  and  designated  at  the  time  of  appointment 
that  the  term  of  one  shall  expire  on  the  first  Wednesday  of  July  in  each 
of  the  three  years  following  the  present  year,  and  in  each  year  thereafter 
the  governor  shall  appoint  one  member  for  a term  of  three  years  from  the 
first  Wednesday  of  July  in  the  year  of  his  appointment.  A vacancy  in  the 
appointive  members  of  the  board  shall  be  filled  in  the  same  manner,  for 
the  unexpired  term.  Any  member  of  the  board  appointed  by  the  governor 
may  be  removed  by  the  governor,  with  the  advice  and  consent  of  the 
council.  The  deputy  commissioner  shall  be  the  clerk  of  the  board  and 
shall  keep  the  records  of  its  proceedings. 

Section  2.  The  chairman  of  the  board  of  prison  commissioners  and 
the  two  women  members  thereof  shall  constitute  a board  of  parole  for  the 
reformatory  for  women.  The  clerk  of  the  reformatory  shall  be  the  clerk 
of  the  board  and  keep  the  records  of  its  proceedings. 

Section  3.  All  the  powers  of  the  board  of  prison  commissioners  relat- 
ing to  the  granting  of  permits  to  be  at  liberty  from  the  state  prison,  the 
Massachusetts  reformatory  and  the  reformatory  for  women  are  hereby 
transferred  to  and  vested  in  the  respective  boards  of  parole  for  said  institu- 
tions. All  provisions  of  law  relative  to  the  granting  of  permits  to  be  at 
liberty  by  the  prison  commissioners  so  far  as  they  are  applicable,  shall 


8 


BOARD  OF  PAROLE. 


[Jan. 


govern  the  granting  of  such  permits  under  this  act.  The  board  of  prison 
commissioners  shall  furnish  to  the  boards  of  parole  all  information  in  its 
possession  relating  to  any  prisoner  whose  case  is  under  consideration. 
No  permit  to  be  at  liberty  from  the  state  prison,  authorized  by  chapter 
four  hundred  and  fifty-one  of  the  acts  of  the  year  nineteen  hundred  and 
eleven,  or  by  chapter  one  hundred  and  three  of  the  acts  of  the  year  nine- 
teen hundred  and  twelve,  and  no  permit  to  be  at  liberty  from  the  Massa- 
chusetts reformatory  or  the  reformatory  for  women,  shall  be  granted  until 
the  prisoner  has  been  seen  by  the  parole  board  of  the  institution  in  which 
he  is  held.  When  a board  of  parole  has  granted  a permit  to  be  at  liberty 
to  any  prisoner,  it  shall  notify  the  board  of  prison  commissioners,  which 
shall  issue  the  permit  as  directed  by  the  board  of  parole. 

Section  4.  The  board  of  prison  commissioners  shall  appoint  a deputy 
commissioner,  who  shall  receive  a salary  of  twenty-five  hundred  dollars  a 
year;  shall  hold  office  during  the  pleasure  of  the  board  and  shall  perform 
his  duties  under  the  direction  of  the  chairman.  The  board  shall  require 
him  to  direct  and  supervise  the  work  of  the  agents  for  the  care,  assistance 
and  oversight  of  paroled  or  discharged  prisoners,  and  he  shall  perform  such 
other  duties  as  it  shall  direct.  It  may  delegate  to  him  powers  and  duties 
relating  to  the  visitation  of  county  prisons  and  the  inspection  of  their 
books  and  affairs. 

Section  5.  The  board  of  prison  commissioners  may  appoint  at  an 
annual  salary  to  be  fixed  by  the  board,  not  to  exceed  sixteen  hundred  dol- 
lars, such  number  of  agents,  in  addition  to  those  now  authorized,  as  may 
be  needed  to  secure  employment  for  prisoners  who  are  to  be,  or  have  been 
released  from  the  state  prison,  the  Massachusetts  reformatory  and  the 
reformatory  for  women,  and  to  enable  the  board  to  carry  out  the  laws 
relative  to  the  identification  of  criminals  and  the  parole  of  prisoners  from 
the  state  prison.  It  shall  be  the  duty  of  the  board,  through  its  agents,  to 
exercise  a careful  supervision  over  all  prisoners  absent  from  said  institu- 
tions upon  parole,  and  it  shall  require  from  said  agents  reports  regarding 
such  prisoners  as  are  not  complying  with  the  conditions  upon  which  they 
were  released.  Every  agent  appointed  by  the  board  shall  give  his  entire 
time,  during  business  hours,  to  his  duties.  No  additional  agents  shall  be 
appointed  under  this  section  until  the  governor  and  council  shall  authorize 
the  making  of  such  appointments. 

Section  6.  The  board  of  parole  for  the  state  prison  and  the  Massa- 
chusetts reformatory  shall  be  an  advisory  board  of  pardons.  It  shall  be 
the  duty  of  said  board  to  consider  carefully  and  thoroughly  the  merits  of 
all  applications  for  pardon  or  commutation  of  sentence  referred  to  it  by  the 
governor,  and  it  shall  make  to  him,  in  writing,  without  publicity,  a report 
containing  its  conclusions  and  recommendations.  No  such  report  Shall 
be  made  without  the  concurrence  of  a majority  of  its  members.  Before 
considering  any  application  for  pardon  or  commutation  of  sentence,  if  the 
conviction  of  the  prisoner  was  had  in  the  superior  court  said  advisory 
board  of  pardons  shall  notify  the  district  attorney,  who  shall  report  the 


1916.] 


PUBLIC  DOCUMENT  — No.  110. 


9 


facts  of  the  case  as  they  appeared  at  the  trial,  or  if  the  conviction  was 
upon  a plea  of  guilty,  the  facts  as  he  understands  them;  the  names  of  all 
the  witnesses  in  the  case,  and  his  recommendation.  If  the  petitioner  is 
serving  a sentence  in  the  state  prison  for  murder  or  for  a felony,  the  at- 
torney-general shall  also  be  notified.  If  the  conviction  was  in  a municipal, 
police  or  district  court  the  justice  thereof  shall  make  to  said  board  a similar 
report  and  recommendation.  The  attorney-general,  district  attorney  or 
justice,  as  the  case  may  be,  shall  be  notified  of  the  hearing  upon  the  appli- 
cation for  pardon  and  they  or  their  representatives  may  be  present  at 
such  hearing,  may  examine  the  petitioner’s  witnesses,  and  may  be  heard. 
Said  board  shall  not  review  the  proceedings  of  the  trial  court,  and  shall 
not  consider  any  questions  regarding  the  correctness,  regularity  or  legality 
of  such  proceedings,  but  shall  confine  itself  solely  to  matters  which  properly 
bear  upon  the  propriety  of  the  extension  of  clemency  to  the  applicant. 
Said  board,  from  time  to  time,  may  make  rules  relative  to  the  calling  of 
meetings  and  to  the  proceedings  thereat.  Any  member  thereof  may  ad- 
minister an  oath  or  affirmation  to  any  person  offering  to  testify  before  it. 

Section  7.  The  ex  officiis  members  of  each  board  of  parole  shall 
receive  such  compensation  as  the  governor  and  council,  from  time  to 
time,  shall  fix  for  service  rendered  under  this  act.  Appointed  members 
shall  receive  the  sum  of  fifteen  dollars  for  each  day  of  actual  service  so 
rendered.  Members  shall  be  reimbursed  for  actual  expenses  incurred  in 
the  performance  of  official  duties. 

Section  8.  So  much  of  section  one  of  chapter  two  hundred  and  twenty- 
two  of  the  Revised  Laws,  as  authorizes  the  board  of  prison  commissioners 
to  delegate  any  of  its  powers  and  duties  to  the  chairman  of  the  board,  is 
hereby  repealed,  and  all  powers  and  duties  so  delegated  are  hereby  re- 
vested in  the  board. 

Section  9.  This  act  shall  take  effect  on  the  first  day  of  July  of  the 
current  year.  [Approved  June  18,  1913. 

The  Board  met  for  the  first  time  on  the  thirty-first  day  of 
July,  1913.  Frank  L.  Randall,  Esq.,  chairman  of  the  Board 
of  Prison  Commissioners,  and  John  B.  ILebberd,  Esq.,  Deputy 
Prison  Commissioner,  were  ex  officiis  members.  The  ap- 
pointive members  were  David  D.  Scanned,  M.D.,  of  Boston, 
Benjamin  Loring  Young,  Esq.,  of  Weston,  and  Warren  F. 
Spalding,  Esq.,  of  Cambridge. 

Deputy  Prison  Commissioner  John  B.  Hebberd  is,  ex  officio, 
clerk  of  the  Board. 

Dr.  Scannell  resigned  from  the  Board,  and  was  succeeded  by 
Thomas  C.  O’Brien,  Esq.,  of  Boston.  Mr.  Young  declined  a 
reappointment  and  was  succeeded  by  the  Hon.  John  H.  Mack 
of  North  Adams. 


10 


BOARD  OF  PAROLE. 


[Jan. 


State  Prison  Parole  Work. 

Prior  to  1911  prisoners  were  released  from  the  State  Prison 
at  the  expiration  of  the  minimum  terms  of  their  sentences, 
under  the  provisions  of  section  115  of  chapter  225  of  the 
Revised  Laws. 

In  1911  an  act  was  passed  (chapter  451)  permitting  (but  not 
requiring)  the  Prison  Commissioners  to  release  a prisoner  who 
has  served  two-thirds  of  the  minimum  of  his  sentence,  but  in 
no  case  until  he  has  served  two  and  one-half  years.  The  law 
is  as  follows:  — 

Section  1.  The  prison  commissioners  may  grant  a special  permit  to 
be  at  liberty  from  the  state  prison  to  a prisoner  held  therein  upon  a sen- 
tence with  a minimum  term  of  more  than  two  and  one-half  years,  when  he 
has  served  two-thirds  of  such  minimum  term,  if  it  appears  to  the  commis- 
sioners that  the  prisoner  is  likely  to  lead  an  orderly  life,  and  they  have  a 
reasonable  assurance  that  he  will  not  become  a charge  upon  public  or 
private  charity;  but  no  such  permit  shall  be  granted  to  any  prisoner  until 
he  has  served  at  least  two  and  one-half  years.  A prisoner  who  is  held  in 
the  state  prison  upon  two  or  more  sentences  may  be  eligible  for  release 
under  this  act  when  he  has  served  two-thirds  of  the  aggregate  of  the  mini- 
mum terms  of  his  sentences. 

Section  2,  providing  for  the  revocation  of  a permit  to  be  at 
liberty,  and  for  the  return  of  the  prisoner  to  the  prison,  is  as 
follows:  — 

Section  2.  Every  permit  granted  hereunder  shall  be  issued  upon 
terms  and  conditions  prescribed  by  the  prison  commissioners,  and  shall  be 
in  force  until  the  maximum  term  of  the  sentence  has  expired.1  The 


1 The  power  to  grant  permits  to  be  at  liberty  from  the  State  Prison,  the  Massachusetts  Re- 
formatory and  the  Prison  Camp  and  Hospital,  and  to  revoke  such  permits,  has  been  transferred 
from  the  Prison  Commissioners  to  the  Board  of  Parole  for  the  State  Prison  and  the  Massachusetts 
Reformatory  by  chapter  206  of  the  General  Acts  of  1915.  Following  is  the  law:  — 

An  Act  relative  to  the  Revocation  of  Paroles. 

Be  it  enacted,  etc.,  as  follows: 

Chapter  eight  hundred  and  twenty-nine  of  the  acts  of  the  year  nineteen  hundred  and  thirteen 
is  hereby  amended  by  striking  out  section  three  and  inserting  in  place  thereof  the  following:  — 
Section  3.  All  the  duties  and  powers  of  the  board  of  prison  commissioners  relating  to  the  granting 
of  permits  to  be  at  liberty  from  the  state  prison,  the  Massachusetts  reformatory,  the  reformatory 
for  women  and  the  prison  camp  and  hospital,  and  in  relation  to  the  revocation  of  such  permits 
and  to  the  revocation  of  paroles  from  the  said  institutions  are  hereby  transferred  to  and  vested 
in  the  several  boards  of  parole  for  said  institutions.  All  provisions  of  law  relative  to  the  granting 
of  permits  to  be  at  liberty  by  the  prison  commissioners,  so  far  as  they  are  applicable,  shall  govern 
the  granting  of  such  permits  under  this  act.  The  board  of  prison  commissioners  shall  furnish  to 
the  various  boards  of  parole  all  information  in  its  possession  relating  to  any  prisoner  whose  case 
is  under  consideration.  No  permit  to  be  at  liberty  from  the  state  prison,  authorized  by  chapter 
four  hundred  and  fifty-one  of  the  acts  of  the  year  nineteen  hundred  and  eleven  or  by  chapter  one 
hundred  and  three  of  the  acts  of  the  year  nineteen  hundred  and  twelve,  and  no  permit  to  be  at 
liberty  from  the  Massachusetts  reformatory  or  the  reformatory  for  women  or  the  prison  camp 
and  hospital,  shall  be  granted  until  the  prisoner  has  been  seen  by  the  parole  board  of  the  institu- 
tion in  which  he  is  held.  When  a board  of  parole  has  granted  or  revoked  any  such  permit  or  has 
revoked  any  parole,  it  shall  notify  the  secretary  of  the  board  of  prison  commissioners,  who  shall 
thereupon  issue  such  permit,  or,  in  case  of  the  revocation  of  a permit  or  parole,  shall  issue  an 
order  for  the  arrest  and  return  of  the  person  whose  permit  or  parole  has  been  revoked.  [Approved 
April  27, 1915. 


1916.] 


PUBLIC  DOCUMENT  — No.  110. 


11 


prison  commissioners  may  revoke  the  permit  for  any  violation  of  its  terms 
and  conditions,  and  thereupon  may  issue  an  order  reciting  the  cause  of  the 
revocation,  and  authorizing  the  arrest  of  the  holder  of  the  permit  and  his 
return  to  the  state  prison  where  he  may  be  held  according  to  the  terms  of 
his  original  sentence;  and  in  that  case  the  time  between  the  release  on 
permit  and  the  return  shall  not  be  considered  as  any  part  of  the  term  of 
the  sentence.  The  order  for  the  arrest  and  return  of  the  prisoner  may  be 
executed  by  any  officer  authorized  to  serve  criminal  process;  and  if  at  the 
time  when  the  order  is  issued,  the  prisoner  is  confined  in  any  prison  under 
another  sentence,  the  service  of  the  order  shall  be  made  upon  his  release 
therefrom. 

The  law  which  created  the  Board  of  Parole  transferred  to  it 
the  powers  of  the  Prison  Commissioners  to  grant  these  per- 
mits to  be  at  liberty  (usually  spoken  of  as  “paroles”)* 

In  the  exercise  of  this  power  the  Board  has  dealt  with  each 
prisoner  as  an  individual.  That  there  may  be  no  possible  un- 
fairness it  permits  every  prisoner  to  make  application  when  he 
becomes  eligible  for  release  under  the  law.  It  is  furnished  with 
all  the  information  in  the  possession  of  the  warden  and  physi-- 
cian  regarding  the  prisoner.  As  far  as  is  practicable  the  Prison 
Commissioners  obtain  and  furnish  to  the  Board  additional 
information  regarding  his  previous  history  and  his  crime,  but  in 
most  cases  they  are  not  able  to  make  exhaustive  investiga- 
tions. The  applicant  himself  is  permitted  to  present  in  writing 
his  reasons  for  asking  for  this  special  permit  to  be  at  liberty. 

After  considering  all  these  matters  the  Board  gives  to  the 
prisoner  himself  a personal  interview,  at  which  he  is  heard  in 
his  own  behalf,  as  fully  as  he  desires.  The  friendless  prisoner 
has  the  same  opportunity  which  is  given  to  those  who  have  the 
most  influential  friends.  In  these  interviews  the  Board  en- 
deavors to  determine  the  wisdom  of  releasing  him  before  the 
expiration  of  the  minimum  term  fixed  by  the  court.  Believing 
that  the  interests  of  the  prisoner  and  those  of  the  community 
are  identical,  it  tries  to  ascertain  the  probable  effect  of  such 
release.  If  in  its  opinion  he  seems  likely  to  become  a law- 
abiding  and  self-supporting  citizen,  it  permits  him  to  serve  a 
portion  of  his  sentence  at  liberty,  but  under  supervision. 

Among  the  things  considered  of  importance,  employment  has 
a large  place.  It  is  believed  to  be  essential  that  work  shall  be 
secured  in  advance,  so  that  the  prisoner  may  be  employed  as 


12 


BOARD  OF  PAROLE. 


[Jan. 


soon  as  he  is  released.  Even  a few  days  of  idleness  may  be 
his  undoing.  It  is  also  important  that  he  shall  have  one  or 
more  friends  who  will  give  him  the  moral  support  which  he 
needs.  The  man  who  has  employment,  and  a friend  who  will 
take  a personal  interest  in  him,  is  less  likely  to  relapse. 

In  some  cases  the  prisoner  is  able,  by  appeals  to  former 
employers  and  in  other  ways,  to  secure  work  in  advance;  in 
others  it  is  secured  by  his  friends.  When  neither  of  these 
sources  supply  the  want,  the  agents  of  the  Prison  Commission 
endeavor  to  do  so,  and  have  been  successful  in  many  cases. 

The  after-care  of  prisoners  released  by  the  Board  is  in  the 
hands  of  the  Prison  Commissioners,  whose  agents  exercise  a 
helpful  supervision  over  them.  Men  are  not  released  to  do  as 
they  please  or  to  go  where  they  please,  but  are  still  under  the 
control  of  the  State,  serving  a portion  of  their  sentences  under 
less  restraint  than  they  had  in  the  prison,  and  misbehavior  is 
followed  by  a return  to  confinement. 

In  the  exercise  of  . the  power  of  the  Board  it  is  found  that 
each  prisoner  must  be  dealt  with  as  an  individual.  Some  can- 
not wisely  be  released.  Records  of  long-continued  criminality 
must  be  considered,  and  there  are  also  some  whose  defective 
mental  condition  is  such  as  to  make  it  probable  that  they  will 
relapse  into  crime  if  released. 

But  as  a rule  it  is  well  for  a fairly  normal  prisoner  to  be 
released  into  the  community  under  restraint,  and  to  be  re- 
adjusted before  the  expiration  of  his  sentence.  If  he  can  be- 
come a wage  earner  and  a producer,  enabling  him  to  establish 
habits  of  industry  and  right  living,  and  can  become  accustomed 
to  the  ways  of  the  good  citizen  while  he  is  still  under  super- 
vision and  control,  it  is  to  his  great  advantage  and  for  the  bene- 
fit of  the  State. 


Releases  from  the  Reformatory. 

The  paroling  power  of  the  Board  over  releases  from  the 
Massachusetts  Reformatory  is  exercised  in  substantially  the 
same  way  as  it  is  in  dealing  with  State  Prison  inmates.  The 
form  of  sentence  to  the  reformatory  makes  it  possible  to  do 
work  that  cannot  be  done  with  State  Prison  men.  It  is  not, 


1916.] 


PUBLIC  DOCUMENT  — No.  110. 


13 


primarily,  a sentence  for  punishment,  though  it  results  in  a 
confinement  which  the  prisoner  usually  considers  a penalty. 
Ordinarily  the  court  does  not  fix  the  term  of  imprisonment. 
It  is  established  by  statute,  and  is  longer  than  usually  is  im- 
posed when  a person  is  sentenced  to  a merely  penal  institution 
for  the  same  offence. 

There  are  no  restrictions  upon  the  power  of  the  Board  to 
release.  The  sole  ground  of  such  action  is  the  probability  that 
the  man  under  consideration  is  likely  to  become  a good  citizen, 
and  the  continuance  of  the  liberty  granted  depends  upon  his 
behavior. 

A man  is  seldom  sent  to  the  reformatory  for  his  first  offence. 
As  a rule,  he  has  been  placed  on  probation,  or  in  other  ways 
has  been  dealt  with  leniently,  to  test  his  ability  to  abandon  his 
evil  ways  without  imprisonment.  If  he  will  not  discontinue 
wrongdoing  the  time  comes  when  another  form  of  effort  must 
be  tried,  and  he  is  sent  to  the  reformatory  for  discipline  and 
training.  This  treatment  requires  the  application  of  methods 
which  will  stimulate  him  to  self-control  and  to  the  forming  of 
new  ideals  and  new  purposes.  In  many  cases  he  must  also  have 
mental  training,  to  supply  the  needs  caused  by  his  lack  or 
neglect  of  the  advantages  of  early  education.  He  needs,  also, 
to  establish  habits  of  industry  and  to  learn  how  to  do  ordinary 
work,  for  many  are  wholly  incapable.  These  things  require 
time.  A brief  detention  is  useless. 

The  Board  has  established  rules  governing  his  release.  They 
put  the  decision  largely  in  his  own  hands.  When  he  has  com- 
plied with  the  requirements  he  may  apply  to  the  Board  for  a 
“ permit  to  be  at  liberty.”  Every  applicant  is  seen  and  heard 
personally.  All  obtainable  facts  as  to  his  past  history  (not 
merely  of  his  offence)  are  considered.  His  capacity  for  earning 
a living  at  assured  employment  is  important.  If  it  is  thought 
likely  that  he  will  live  properly,  he  is  granted  a conditional 
release  and  allowed  to  be  at  large,  subject  to  return  to  the 
institution  if  he  fails  to  conform  to  the  conditions  of  his  permit. 
If  he  is  brought  back  for  further  treatment  he  is  allowed,  in  time, 
to  apply  for  a second  release,  and  sometimes  for  a third. 

As  has  been  said  regarding  State  Prison  inmates,  many  are 
defective  mentally,  and  some  of  them  will  never  be  equal  to 


14 


BOARD  OF  PAROLE. 


[Jan. 


the  demands  of  competitive  life.  This  class  of  mentally  defec- 
tive offenders  constitutes  one  of  the  most  difficult  of  the  prob- 
lems of  the  State.  It  can  be  solved  only  by  the  establishment 
of  a separate  institution.  It  is  not  fair  to  this  class  of  offenders 
to  keep  them  with  those  who  are  normal,  and  their  presence 
interferes  seriously  with  the  administration  of  the  reformatory. 

Details  regarding  the  parole  work  of  the  Board  will  be  found 
in  another  part  of  the  report. 

The  Advisory  Board  of  Pardons. 

The  statute  which  created  the  Board  of  Parole  for  the  State 
Prison  and  the  Massachusetts  Reformatory  provides  (section  6) 
that  it  shall  be  an  advisory  board  of  pardons.  Its  duty  is  “to 
consider  carefully  and  thoroughly  the  merits  of  all  applications 
for  pardon  or  commutation  of  sentence  referred  to  it  by  the 
governor/’  and  “to  make  to  him,  in  writing,  without  publicity, 
a report  containing  its  conclusions  and  recommendations.”  It 
is  required  to  notify  the  district  attorney  (in  murder  cases  the 
Attorney-General),  or,  if  the  case  came  from  the  lower  court, 
the  judge  thereof.  They  are  required  to  furnish  information, 
and  may  be  present  at  hearings  given  by  the  Board. 

The  Board  is  not  allowed  to  review  the  proceedings  of  the 
trial  court,  but  must  confine  itself  solely  to  matters  which 
properly  bear  upon  the  propriety  of  the  extension  of  Executive 
clemency  to  the  applicant. 

It  is  the  custom  of  the  Governor  to  refer  to  the  Board  most 
applications  for  pardon  received  by  him.  With  its  facilities 
for  obtaining  information  it  is  able,  usually,  to  make  a report 
which  will  furnish  the  Governor  the  facts  of  the  case.  It  is 
the  invariable  usage  of  the  Board  to  see  personally  the  appli- 
cant for  pardon,  and  to  hear  whatever  he  wishes  to  say.  It 
also  permits  the  support  of  the  applications  by  counsel  or  by 
friends,  but  as  far  as  possible  restricts  them  to  the  presenta- 
tion of  facts.  The  sole  purpose  of  the  Board  is  to  ascertain 
whether  or  not  there  is  reason  for  the  exercise  of  clemency  by 
the  Executive.  Its  functions  are  purely  advisory;  it  has  no 
power.  Its  relations  to  a case  cease  when  it  has  made  its 
report  to  the  Governor. 


1916.] 


PUBLIC  DOCUMENT  — No.  110. 


15 


Another  part  of  the  report  shows  the  number  of  pardon 
cases  considered  by  the  Board,  and  its  action  upon  them. 

Recommendations. 

Extension  of  Power  to  Parole  from  State  Prison. 

The  theory  of  the  indeterminate  sentence  law  passed  in  1895 
is  that  the  date  of  a prisoner’s  discharge  from  the  State  Prison 
should  be  determined  by  an  administrative  board  and  not  by 
the  court,  which  is  forbidden  by  the  statute  to  “fix  the  term 
of  imprisonment.”  The  court  is  required,  however,  to  establish 
a maximum  and  a minimum  term  for  which  the  convict  may  be 
held.  This  is  the  form  of  sentence  commonly  adopted  when 
States  have  desired  to  abandon  the  old  method  of  having  terms 
of  imprisonment  fixed  in  advance  by  the  courts.  Massachusetts 
was  one  of  the  first  States  to  adopt  the  indeterminate  sentence 
in  this  form. 

An  experience  with  hundreds  of  cases  has  shown  that  under 
proper  friendly  supervision  selected  men  can  be  allowed  to 
return  to  a limited  freedom  with  great  advantage  to  themselves 
and  to  the  community.  In  other  States  where  similar  results 
have  been  obtained  the  tendency  has  been  to  greatly  increase 
the  portion  of  the  sentence  which  can  be  served  outside  the 
prison.  The  Board  now  has  the  right  (with  some  qualifica- 
tions) to  permit  picked  men  to  so  serve  one-third  of  the  mini- 
mum term  in  the  community.  It  believes  that  the  limitations 
upon  its  power  to  parole  may  be  wisely  removed  or  modified. 
It  finds  some  men  with  short  sentences  whom  it  is  not  necessary 
to  confine  the  full  minimum  of  two  and  one-half  years,  as  now 
required,  and  some  who  can  wisely  be  allowed  to  serve  more 
than  one-third  of  their  minimum  terms  outside  the  prison. 

An  enlargement  of  the  power  of  the  Board  to  parole  doubtless 
would  tend  to  decrease  the  number  of  applications  for  pardon 
or  reduction  of  sentence  by  Executive  action.  It  has  been 
found  wise  to  have  a considerable  number  of  sentences  com- 
muted to  a point  where  paroles  could  be  granted.  Excepting  in 
cases  of  a miscarriage  of  justice,  release  on  parole  is  preferable 
to  the  exercise  of  Executive  clemency. 

We  recommend  legislation  for  this  purpose. 


16 


BOARD  OF  PAROLE. 


[Jan. 


Need  of  Information. 

A law  passed  in  1911  (chapter  451)  authorizes  the  release  of 
a prisoner  when  he  has  served  two-thirds  of  his  minimum  term, 
“if  it  appears  that  he  is  likely  to  live  an  orderly  life,”  and  if 
there  is  “a  reasonable  assurance  that  he  will  not  become  a 
charge  upon  public  or  private  charity.”  Frequently  the  only 
available  fact  of  record  at  the  time  of  his  commitment,  in 
relation  to  the  offence  of  a prisoner,  is  that  on  a given  day, 
some  time  before  he  becomes  eligible  for  release,  he  committed 
an  unlawful  act  for  which  he  was  sentenced  to  prison.  The 
Board,  when  it  is  called  upon  to  act  upon  the  question  of  his 
release,  also  knows  his  record  in  the  prison,  whatever  that  may 
be  worth.  This  meager  information  is  of  comparatively  little 
value  to  the  Board  in  deciding  the  questions  involved  in  release. 
It  is  equally  necessary  to  know  the  details  of  the  crime,  and  of 
preceding  crimes  if  any;  what  have  been  his  surroundings, 
associates  and  training;  in  fact,  whatever  in  his  past  bears 
upon  the  question  of  his  fitness  for  free  life,  and  his  prospects 
for  the  future. 

Experience  has  shown  that  it  is  almost  impossible  to  obtain 
this  information  when  the  time  for  release  comes.  Few  records 
are  kept  by  prosecuting  officers;  district  attorneys  change; 
witnesses  move  or  die  or  forget  the  facts;  and  in  many  cases 
the  Board  is  unable  to  either  verify  or  disprove  the  story  of  the 
prisoner  himself. 

This  information  can  best  be  gathered  at  the  trial,  when  all 
the  facts  are  fresh  in  the  minds  of  the  court,  the  district  at- 
torney and  the  probation  officer.  Several  States  require  that 
it  shall  be  put  in  writing  then  or  soon  after  and  forwarded  to 
the  prison,  where  it  can  be  kept  until  it  is  needed.  To  obtain 
it  afterward  is  not  only  unsatisfactory  but  also  very  expensive. 

We  suggest  the  careful  consideration  of  this  need,  and  of  the 
best  way  of  supplying  it. 

Records  in  Cases  of  Pleas  of  Guilty. 

In  the  exercise  of  its  powers  (especially  when  acting  as  an 
advisory  board  of  pardons)  the  Board  frequently  hears  from  a 
prisoner  the  declaration  that  he  is  innocent  of  the  offence  for 


1916.] 


PUBLIC  DOCUMENT  — No.  110. 


17 


which  he  is  serving  sentence.  In  many  of  these  cases  the  court 
record  shows  that  he  pleaded  guilty.  His  usual  explanation  of 
the  seeming  contradiction  is  that  he  pleaded  guilty  on  advice 
of  counsel,  of  court  officers  or  of  friends,  on  the  ground  that  as 
circumstances  looked  badly  he  might  be  convicted,  and  if  he 
insisted  upon  a trial  his  sentence  would  probably  be  heavier 
than  it  would  be  if  he  saved  the  government  the  expense  of  a 
trial.  It  also  occurs,  sometimes,  that  under  a misapprehension 
an  accused  person  pleads  guilty  to  an  offence  more  serious  than 
the  facts  warrant. 

While  the  Board  attaches  little  importance  to  the  unsup- 
ported declaration  of  innocence  from  one  who  pleaded  guilty, 
it  is  under  obligation  to  ascertain  the  facts,  — a difficult  thing 
when  considerable  time  has  elapsed.  This  difficulty  can  be 
removed  by  merely  requiring  that  when  a prisoner  pleads 
guilty  he  shall  make  in  court  a statement  showing  his  guilt. 

We  recommend  legislation  covering  this  point. 

Character  an  Essential  Ground  of  Parole. 

The  indeterminate  sentence  law,  passed  in  1895,  required 
the  court,  in  imposing  a sentence  to  imprisonment  in  the  State 
Prison,  to  establish  a maximum  term  and  a minimum  term  for 
which  the  convict  may  be  held,  instead  of  fixing  the  term  of 
imprisonment,  and  it  provided  that  the  Board  of  Prison  Com- 
missioners might  release  a prisoner  at  any  time  after  the  ex- 
piration of  the  minimum  term.  The  only  purpose  of  giving 
the  court  power  to  fix  a minimum  term  is  to  prevent  a prema- 
ture release.  The  State’s  authority  over  the  prisoner  under 
such  a sentence  ends  only  with  the  expiration  of  the  maximum 
term.  Until  then  he  is  in  the  control  of  the  State,  whether  he 
is  in  the  prison  or  at  liberty.  The  establishment  by  the  court 
of  a minimum  term,  under  the  law  of  1895,  gave  him  no  right 
to  release  against  the  judgment  of  the  Board.  Probable  fitness 
to  be  at  large  was  the  only  ground  for  release  prior  to  the  ex- 
piration of  the  maximum  term,  and  is  the  only  proper  ground. 

In  1898  the  law  was  so  changed  that  if  a prisoner  has  ob- 
served all  the  rules  of  the  prison,  and  has  not  been  punished, 
he  must  be  released  at  the  expiration  of  his  minimum  term, 


18 


BOARD  OF  PAROLE. 


[Jan. 


regardless  of  his  character  or  his  fitness  to  be  at  liberty.  But  if 
he  breaks  a single  rule,  or  is  punished  even  once,  he  forfeits 
this  right  and  his  release  becomes  subject  to  the  discretion  of 
the  Board.  It  is  proper  that  behavior  in  prison  should  be 
considered,  with  other  things,  in  the  determination  of  his  fit- 
ness to  be  set  at  liberty,  but  in  making  it  the  only  ground  for 
release  the  law  gives  it  an  importance  far  in  excess  of  its  real, 
proportionate  value.  Permission  to  serve  a portion  of  his  sen- 
tence outside  the  prison  should  be  neither  given  nor  withheld 
solely  on  the  ground  of  such  behavior. 

The  existing  law  interferes  seriously  with  the  exercise  of  one 
of  the  most  important  functions  of  the  releasing  power,  — 
that  of  readjusting  the  prisoner  in  the  community.  Effort  is 
made  in  all  cases  to  see  that  employment  is  ready  for  him 
when  he  goes  out  lest  he  relapse  into  crime  because  he  is  idle, 
and  to  place  him  in  surroundings  which  will  make  it  as  easy  as 
possible  for  him  to  do  right.  It  is  very  difficult  to  do  this  in 
cases  in  which  the  prisoner  is  released  on  a day  fixed  in  advance 
by  the  court. 

We  recommend  that  the  law  be  so  changed,  so  far  as  future 
sentences  are  concerned,  that  the  Board  may  have  discretion 
regarding  the  time  of  release. 

Indeterminate  Sentence  to  the  State  Prison. 

The  present  method  of  dealing  with  crime  has  as  its  main 
aim  the  punishment  of  the  offender.  It  deals  with  his  offence 
rather  than  with  him.  It  concerns  itself  principally  with  his 
one  past  act  rather  than  with  his  character.  More  considera- 
tion is  given  to  what  he  did  than  to  what  he  is.  It  often  hap- 
pens that  a man  is  much  worse  than  his  worst  deed,  and  his 
short  sentence  permits  him  to  return  to  the  community  sooner 
than  he  should,  and  to  repeat  his  misdeeds.  On  the  other 
hand,  an  offender’s  deed  is  often  much  worse  than  he  is,  and 
he  is  imprisoned  longer  than  is  necessary. 

Many  of  the  most  objectionable  features  of  our  methods  of 
punishing  crime  are  due  to  the  fact  that  the  court,  with  com- 
paratively little  information  regarding  the  character  of  the 
offender,  is  required  to  fix,  in  advance,  the  date  at  which  he 
must  be  restored  to  liberty,  and  he  is  released  from  imprison- 


1916.] 


PUBLIC  DOCUMENT  — No.  110. 


19 


ment  at  that  date,  even  though  he  is  as  unfit  for  free  life  as  he 
was  when  he  was  committed.  Insane  persons  are  committed 
until  they  are  thought  fit  to  be  at  large.  This  serves  a double 
interest,  — that  of  the  person  committed  and  that  of  the  com- 
munity. A similar  method  in  dealing  with  crime  would  have 
a similar  result.  Under  a penal  sentence  the  prisoner  has 
neither  obligation  nor  inducement  to  reform. 

The  penalty  is  supposed  to  be  made  to  “fit  the  crime”  in- 
stead of  the  criminal.  In  the  prison  he  is  in  antagonism  with 
the  State,  which,  in  the  sentence,  announces  its  purpose  to 
“punish”  him.  He  merely  sets  himself  to  endure  it.  His  treat- 
ment is  the  same,  no  matter  what  improvement  he  makes.  He 
gains  nothing  by  doing  his  best.  He  will  be  restored  to  liberty 
on  the  day  fixed  in  advance  by  the  judge,  regardless  of  his 
character. 

The  indeterminate  sentence  puts  emphasis  upon  material 
matters  besides  the  crime.  It  recognizes  his  offence  as  an  in- 
dication that  it  may  be  necessary  to  imprison  him  for  a time, 
and  gives  the  court  authority  to  direct  such  imprisonment.  As 
he  is  sent  away  because  unfit  to  be  at  large,  it  requires  that  his 
fitness  shall  be  established  before  he  can  be  released.  As  the 
restoration  of  this  fitness  may  be  a long  process,  requiring 
much  time,  — and  the  court  cannot  tell,  in  advance,  when  it 
will  be  completed,  — it  leaves  the  determination  of  the  question 
to  those  who  have  facilities  for  deciding  when  the  interests  of 
the  community  will  permit  his  release.  And  as  the  character 
of  a man  cannot  be  ascertained  with  certainty  while  he  is  in 
surroundings  which  are  unnatural  for  human  beings,  the  con- 
tinuance of  his  liberty  is  made  dependent  upon  the  continuance 
of  good  conduct,  under  normal  conditions,  in  the  community. 
If  he  cannot  maintain  this  he  must  be  returned  for  further 
treatment. 

The  imprisonment  of  the  offender  involves  suffering,  but  the 
imposition  of  punishment  for  punishment’s  sake  should  not  be 
its  principal  aim.  Imprisonment  is  a means,  not  an  end.  Its 
main  purpose  is  the  protection  of  society.  If  it  could  continue 
for  life  the  community  would  have  no  special  interest  in  the 
prisoner’s  reformation,  but  it  is  limited.  As  he  must  be  free 
some  day,  the  public  has  an  interest  in  his  reformation.  It  is 


20 


BOARD  OF  PAROLE. 


[Jan. 


protected  from  the  unreformed  criminal  as  long  as  he  is  incar- 
cerated, but  no  longer.  The  mere  fact  that  he  has  been  “ pun- 
ished” a certain  number  of  years  is  of  little  value. 

The  indeterminate  sentence  makes  the  treatment  of  a prisoner 
change  as  he  changes.  Much  depends  upon  himself.  This  se- 
cures his  co-operation  in  the  prison  and  afterwards.  Eventu- 
ally he  may  secure  his  release,  but  not  his  discharge.  He  is  at 
liberty,  but  is  under  supervision  and  restraint.  The  most  criti- 
cal time  in  a prisoner’s  life  is  the  day  of  his  release.  Under  the 
definite  sentence  it  is  sudden,  and  many  cannot  stand  the  strain. 
Under  the  indeterminate  sentence  it  is  gradual.  He  is  re- 
adjusted to  the  community,  and  resumes  his  relations  to  it 
under  conditions  which  make  it  reasonably  easy  to  do  well. 
The  restraint  and  supervision  are  friendly  and  helpful. 

The  essential  feature  of  the  indeterminate  sentence  is  that 
the  offender  is  permitted  to  undergo  a portion  of  his  training 
and  treatment  outside  the  prison  but  under  the  direction  of 
the  authorities.  If  he  is  able  to  be  law  abiding  he  retains  his 
liberty;  otherwise,  he  forfeits  it  for  a time. 

The  Legislature  limits  the  imprisonment  for  a given  offence, 
and  also  gives  the  court  the  right  to  further  limit  it.  Under 
the  indeterminate  sentence  the  limit  established  by  the  Legis- 
lature remains  as  the  only  fixed  one.  The  prisoner  cannot  be 
held  beyond  that.  Deciding  that  a man  should  be  imprisoned 
is  a judicial  function.  Deciding  when  he  is  fit  for  release  is  an 
administrative  function.  Therefore  it  is  committed  to  an  ad- 
ministrative board,  and  release  is  conditional,  not  absolute. 

This  method  has  been  tried  in  penitentiaries  in  many  States 
with  excellent  results.  It  has  been  tried  in  principle  in  our  two 
State  reformatories  for  many  years,  and  for  them  it  is  the  ac- 
cepted policy  of  the  State.  We  believe  it  should  be  applied  to 
the  State  Prison. 

Agent  for  the  Investigation  of  Pardon  Cases , etc. 

The  work  of  the  Board  as  an  advisory  board  of  pardons  has 
been  an  increasing  one.  It  is  the  desire  of  the  Board  to  make 
very  thorough  investigations  of  all  pardon  cases  referred  to  it 
by  the  Governor.  Many  of  them  are  very  important,  and  the 
Board  cannot  advise  His  Excellency  as  the  law  requires  without 


1916.] 


PUBLIC  DOCUMENT  — No.  110. 


21 


having  all  obtainable  facts.  These  can  be  secured  only  by 
personal  investigations,  made  by  a person  trained  for  the  work 
and  with  available  time,  as  reports  from  prosecuting  officers  and 
courts,  however  complete  in  themselves,  do  not  afford  all  the 
information  required  by  the  Executive  in  passing  upon  the 
question  of  the  granting  or  withholding  of  clemency. 

The  law  requires  the  Prison  Commissioners  to  “furnish  to 
the  board  all  information  in  its  possession  relating  to  any 
prisoner  whose  case  is  under  investigation,”  but  it  is  doubtful 
if  this  applies  to  pardon  cases.  The  agents  of  the  Prison  Com- 
mission have  furnished  much  information  in  pardon  cases,  but 
their  other  duties  are  so  important  and  engrossing  that  they 
should  not  be  taken  from  them  for  this  work.  The  need  of  an 
agent  to  do  this  work  in  pardon  cases  for  the  Board  is  a very 
urgent  one. 

An  Economic  View  of  Parole. 

The  primary  and  most  important  consideration  in  the  ad- 
ministration of  the  parole  law  is  its  effect  upon  those  who  are 
released.  It  is  plain  that  if,  after  a period  of  imprisonment,  a 
prisoner  can  be  set  at  liberty  under  supervision  and  readjusted 
to  the  community  so  as  to  live  as  a law-abiding  citizen,  it  is 
for  the  mutual  advantage  of  the  man  and  the  public.  Any 
reasonable  expense  is  justifiable,  if  this  can  be  accomplished, 
even  if  there  were  no  pecuniary  gain. 

But  there  is  a great  financial  saving  in  the  cost  of  supporting 
the  prisoner.  The  only  absolutely  fixed  expenses  are  those  for 
food  and  clothing.  The  cost  of  these  two  items  at  the  State 
Prison  last  year  was  $59.26  per  capita  per  annum.  In  a 
single  year  122  men  were  paroled.  The  aggregate  reduction 
of  their  sentences  was  182  years.  In  other  words,  if  they  had 
remained  for  their  minimum  terms  they  would  have  served 
182  years  more  than  they  did  serve,  and  it  would  have  been 
necessary  to  feed  and  clothe  them  at  a cost  of  $59.26  a year 
each.  The  total  saving  to  the  State  for  these  two  items  was 
$10,785.32. 

A more  important  item  must  also  be  considered.  While  in 
prison  they  are  consumers,  when  released  most  of  them  be- 
come producers.  Most  of  the  paroled  men  are  at  work,  at 
substantially  the  ordinary  wages  of  other  men.  Many  of  them 


22 


BOARD  OF  PAROLE. 


[Jan. 


earn  as  much  as  $20  per  week;  some  of  them  more.  But  if 
a very  low  estimate  of  their  earnings  should  be  taken  (say 
$10  a week,  or  $520  a year  each),  for  the  182  years  which 
they  are  allowed  to  spend  outside  the  prison  their  aggregate 
earnings  would  amount  to  $92,640. 

The  number  of  men  on  parole  from  the  reformatory  is 
much  larger,  and  the ' terms  for  which  they  are  paroled  are 
longer,  so  that  the  saving  to  the  State  in  the  cost  of  their 
support  is  larger  than  it  is  in  the  State  Prison.  Though  they 
are  younger  than  the  State  Prison  men,  and  earn  less  per  man, 
the  aggregate  earnings  are  larger. 

The  economic  result  of  the  parole  system,  which  transfers 
men  from  the  consuming  class  to  the  producing  class,  has  not 
received  the  consideration  it  deserves.  The  cost  of  adminis- 
tration is  very  small  in  comparison  with  the  pecuniary  returns. 

The  four  agents  who  have  the  care  of  the  more  than  1,600 
men  on  parole  cost,  for  their  salaries,  but  $6,400,  to  which 
must  be  added  a small  amount  for  expenses. 


Parole  Statistics. 

Number  and  Places  of  Meetings  of  the  Board  of  Parole  for  the  State  Prison  and  the  Massachusetts  Reformatory,  July  31,  1913,  to 

Dec.  1,  1915. 


23 


1916.]  PUBLIC  DOCUMENT  — No.  110. 


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Number  and  Places  of  Meetings  of  the  Board  of  Parole  for  the  State  Prison  and  the  Massachusetts  Reformatory  — Concluded. 


24 


BOARD  OF  PAROLE 


[Jan, 


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1916.] 


PUBLIC  DOCUMENT  — No.  110. 


25 


Character  of  Meetings. 

Parole  work, 

Pardon  work, 

Parole  and  pardon  work,  .... 
Executive  sessions, 


Meetings. 

. 145 

70£ 
. 31i 


Total, 


254 


Number  of  Persons  interviewed  and  Number  paroled,  Aug.  1,  1918,  to 

Dec.  1,  1915. 


- 

Number 

interviewed. 

Number 

paroled. 

State  Prison, 

565 

338 

Massachusetts  Reformatory, 

1,935 

1,344 

Prison  Camp  and  Hospital, 1 

155 

115 

2,655 

1,797 

* Authority  was  given  to  the  Board  to  grant  paroles  from  this  institution  by  chapter  206,  General 
Acts  of  1915. 


Summary  of  Pardon  Applications  considered  by  the  Advisory  Board  of  Pardons , Aug.  1,  1913 , to  Dec.  1 , 1915. 


26 


BOARD  OF  PAROLE. 


[Jan.  1916. 


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After  transfer  to  the  Massachusetts  Reformatory. 


INDEX 


PAGE 

Advisory  Board  of  Pardons,  law  regarding,  .....  8,  9 

duties  of,  . 4 . 9,  14 

investigations  by,  .........  24,  25 

meetings  of,  .........  24 

methods  of  procedure,  . . 8, 9,  14,  15 

work  of,  statistical  table,  ........  25 

Agent  to  investigate  pardon  cases  recommended,  . . 21 

Board  of  Parole,  creation  of,  .......  7 

changes  in  membership  of,  ......  9 

meetings  of,  . . . . 22,  24 

methods  of,  .........  11-13 

organization  of,  ........  9 

power  to  release,  extension  of,  ......  15 

Employment  for  paroled  prisoners,  .......  12 

Houses  of  Correction,  pardons  from,  ......  25 

Indeterminate  sentence,  reasons  for,  17-19 

change  of  law  recommended,  . 18,  19 

Information,  need  of,  in  parole  work,  ......  16 

Massachusetts  Reformatory,  paroles  from,  7,  13 

pardons  from,  ..........  25 

Mentally  defective  prisoners,  . 12,  14 

need  of  institutions  for,  ........  14 

Pardons,  Advisory  Board  of.  See  Advisory  Board  of  Pardons. 

number  of  cases,  .........  25 

Parole  work,  State  Prison,  law  regarding,  ......  10 

methods  of,  .........  11 

Massachusetts  Reformatory,  .......  13 

increased  power  recommended,  .......  15 

statistics  of,  .........  24 

Paroled  prisoners,  after-care  of,  ......  12 

return  on  revocation  of  parole,  . 10, 11 

supervision  of,  .........  8 

Paroles,  revocation  of,  . 10,  11 

Pleas  of  guilty,  need  of  information  in  cases  of,  ....  16 

Prison  Camp  and  Hospital,  paroles  from,  ......  24 

pardons  from,  ..........  25 

Prisoners,  mental  defectiveness  of,  12,  14 

need  of  institution  for,  ........  14 

Recommendations,  .........  15 

regarding  agent  for  pardon  cases,  ......  21 

extension  of  parole  power,  .......  15 

indeterminate  sentences,  ........  17-19 

pleas  of  guilty,  .........  16,  17 

Reformatory  for  Women,  pardons  from,  ......  25 

Revocations  of  paroles,  law  regarding,  ......  10 

Sentences,  indeterminate,  ........  17-19 

change  of  law  recommended,  18,  19 

State  Prison  pardons,  cases  considered,  .....  25 

paroles,  law  regarding,  ........  7,  10 

cases  considered,  .........  24 

parole  work,  methods  of,  . 11 


r 

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